Gaillard, J.C. (2012)
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PEOPLE’s reSPONSE TO DISASTERS: vulnerability, capacities and resilience in Philippine context JC Gaillard Center for Kapampangan Studies Angeles City, Pampanga Kumusta na, ayos pa ba Ang buhay natin, kaya pa ba Eh kung hinde, paano na Ewan mo ba, bahala na? Dong Abay, Yano, Kumusta na, 1994 About the cover: “Turbulent Sea” by Cyrene B. Gaillard Oil on paper, 48 cm x 58.5 cm, France, 2010 Although seemingly vulnerable the small outrigger boat actually proves able to face huge waves as Filipino people show capacities and resilience in facing natural and other hazards. Copyright 2011 JC GAILLARD All rights reserved. No part of this book may be used or reproduced in any manner whatsoever without the written permission of the Author. Printed in the Philippines. ISBN: 978-971-0546-13-8 Book design: Leonardo R. Calma, Jr. Cover design: Joel P. Mallari Published by: Center for Kapampangan Studies, Holy Angel University, Angeles City, Pampanga Chapter 6 Mainstreaming marginalized groups and their capacities s discussed in introduction, some people among marginalized groups within Asociety may be more vulnerable than others because they are deprived access to resources which are available to others with more power. The needs of those marginalized people are less considered in actions to reduce the risk of disaster. Such an argument is not new as it dates back to pioneer works by Wisner (1978) and Blaikie and Brookfield (1987). However, it is somehow overlooked by contemporary researchers, policy makers and practitioners when it comes to DRR. This, despite PART 2 the growing gap observed worldwide between the poorest and the richest, between people regularly affected by natural hazards and those who have never been concerned, between people and governments able to deploy an increasingly large arsenal of measures and those unable to resort to even the most basic strategies. Marginalization is a matter of poverty, but not only that. Obviously, limited financial resources prevent people from choosing where to settle, which includes choosing safer areas which can be expensive. Poor people are also unable to afford DRR measures although these are often available locally. Vulnerable people and communities in the face of natural hazards also include those who are socially and culturally excluded from dominant policies and DRR activities. These encompass all neglected segments of societies, often including children, elderly, women, gender minorities, people with disabilities, refugees, prisoners, homeless people and ethnic minorities. Many are physically fragile, unable to move easily and dependent on the decisions of others in the face of natural hazards – frequently because all aspects of society do not factor in their special needs. Still, marginalized groups display their own resources and capacities in facing natural hazards, which should be harnessed for strengthening DRR. This chapter NO ONE IS A HELPLESS VICTIM! CHAPTER 6: MAINSTREAMING MARGINALIZED GROUPS AND THEIR CAPACITIES provides two critical examples in the Philippine context. First, it draws upon the case of a marginalized social group hitherto totally overlooked in the Philippines when it comes to disasters and DRR: the baklas. In a second instance, this chapter investigates the case of the youth in DRR and suggests that when carefully Mt Bulusan considered through the use of adapted tools, children and teenagers may display Bulusan Pacic Ocean significant capacities in facing disasters. Integrating baklas and their capacities in DRR: a case study from Irosin, Sorsogon Cadac-an Land Although nowadays often considered as gays, or sometimes transsexuals, the Irosin Flood-prone area town identity of the baklas is much more ambiguous as it does not refer only to a particular River proper River sexual behavior. It rather expresses specific roles within the household and society Road or an ability to swing from male to female tasks and responsibilities (Garcia, Macawayan Mountain 2008). It is, therefore, more a question of gender than a simple differentiation Town upon a divergent sexual orientation. This is evident in the termbakla (noun) which 0 4km Project site © JC Gaillard, 2007 is actually the contraction of babae (woman) and lalaki (man). When used as an adjective, bakla further means uncertainty or indecisiveness (Tan, 1995). Figure 29. Location of Macawayan and flood-prone areas in Irosin, Sorsogon (after data from the Mines and Geosciences Bureau) 122 Baklas openly claim their identity and are recognized for their leadership and 123 PART 2 PART 2 initiative when it comes to community activities. Yet, they often suffer from valleys on the mountaintops, undulating hills and mountain peaks, including Mt mockery and discrimination when in the presence of men and women, especially Bulusan which is one of the most active volcanoes in the Philippines (Delfinet al., in rural areas. On the larger political scene, and despite several legal requests, 1993). The municipality also experiences several cyclones per year, which trigger marriage between baklas has not yet been recognized. However, progress towards flooding, flash floods and landslides. Although primarily relying on agricultural the recognition of baklas’ rights has recently been made as their congressional party resources, Irosin is also a catchment area catering public and private services to at list named Ladlad was authorized by the Supreme Court to file candidacy during least five adjoining towns. the 2010 elections. Within the family, young baklas are frequently marginalized and tasked with demanding house chores which span across the usual responsibilities The P3DM for DRR project was conducted in the village of Macawayan located at of both boys (e.g. fishing, fetching fire wood and water) and girlse.g. ( cleaning the the midst of the plain of Irosin (Figure 6 and 29). The Cadac-an River traverses the house, doing the laundry, caring for babies). village and sustains the irrigation of agricultural activities mainly rice production. Local people are often forced to evacuate their home along the river during Thebaklas’ ability to swing from male to female tasks and responsibilities as well as cyclone events and heavy rains. Livelihoods of the people are greatly affected since their sense of initiative and leadership prove particularly useful in time of disaster, majority of the people relies on rice production that is usually the most affected thus making baklas crucial resource persons within their communities when during flooding. confronted with natural hazards. Unfortunately, such capacities are often, at best, overlooked or at worst, denigrated. In Irosin, young baklas are asked by the parents to do the dirty chores and clean their house in the aftermath of flash floods. Simultaneously, they, too, are those A similar P3DM for DRR project as the one described in the previous chapter who spontaneously walk around the town to collect relief goods among their was conducted in Irosin. This project enabled to considerbaklas ’ particular neighbors. When evacuated in crowded churches or public buildings, baklas suffer vulnerability but also their capacities to face natural hazards. Irosin has a very from the lack of privacy, being uncomfortable with either women or men. Their irregular terrain characterized by the plain on the valley floor, secluded plains and NO ONE IS A HELPLESS VICTIM! CHAPTER 6: MAINSTREAMING MARGINALIZED GROUPS AND THEIR CAPACITIES personal grooming needs are also objects of jokes from men in male comfort rooms where they are assigned. Nonetheless, they spontaneously care for babies and young children. Some do the cooking. For most of the young baklas of Irosin, disasters, therefore, turn out to be even more stressful and demanding situations than for men or women. P3DM for DRR was conducted in January 2010 under the leadership of the Integrated Rural Development Foundation (IRDF), an NGO involved in rural development. The primary objective of the project was to introduce DRR into local development planning (Figure 1). A number of stakeholders participated in the project including the local community, the BDCC, the Municipal Government of Irosin, the provincial government of Sorsogon, the local elementary school community, PHIVOLCS, IRDF, the Center for Disaster Preparedness (CDP), and UP Diliman. The initial activity consisted of building a 2.74 m X 2.74 m 3D map covering the whole village of Macawayan with a land area of 333.33 ha. The map enabled participants to plot natural hazards, vulnerable assets and people’s capacities Figure 30. Young baklas participating in the P3DM activity in Macawayan, Irosin, in (Figure 2). Overlapping hazard-prone areas, vulnerable assets and local capacities January 2010 (photograph by JC Gaillard) 124 in one map allows people to concretely appraise disaster risk in their immediate 125 PART 2 environment. P3DM eventually facilitated the planning of actions to reduce the important and unique contribution of this project. P3DM provided a tangible PART 2 risk of disaster, including measures to reduce people’s vulnerability and to enhance tool where baklas, the larger community of Macawayan and outside stakeholders capacities to face natural hazards. This P3DM project also featured an innovative were able to discuss DRR face-to-face, at the same time, and around the same indigenous version of GIS tools connecting the 3D map with columnar tables from table. This proved particularly useful not only for assessing thebaklas ’ particular the village officials containing